1978年以来中国救灾减灾工作研究

【作者】 蒋积伟；

【导师】 刘晶芳；

【作者基本信息】 中共中央党校 ， 中共党史， 2009， 博士

【摘要】 本文以改革开放以来中国的救灾减灾工作为研究对象,系统梳理了1978年以来中国救灾减灾工作改革发展的历史脉络,揭示了其背后深刻的历史背景及演变的原因,并在此基础上总结了中国救灾减灾工作改革发展的历史启示、教训和理念的变化。按照救灾减灾工作发展的阶段性特点,本文将改革开放以来中国救灾减灾工作的改革分为三个阶段:对传统救灾减灾工作模式的调整阶段(1978——1989)、现代救灾减灾工作模式的初步形成阶段(1989-1998)和对现代救灾减灾工作模式的改革完善阶段(1998年以来)。论文由导论、正文(四章)和结束语(第五章)组成。导论部分着重介绍了本选题的学术价值和现实意义、国内外研究现状、选题的创新点和难点、主要研究方法和论文的基本框架。第一章1949—1976年中国传统救灾减灾工作的回顾。分析了1949——1978年间自然灾害对中国社会机体的破坏作用,及其对中共工业化战略、土改、剿匪、农业合作化等项工作的消极影响,简要回顾了这一阶段中国的救灾减灾方针、政策和措施,并在此基础上总结了传统救灾体制之下中国救灾减灾工作存在的问题。第二章1978——1989年中国传统救灾减灾工作的调整——以“改变救灾款的使用办法”为中心。主要梳理和分析了1978——1989年中国传统救灾减灾工作的调整及其背景,在此基础上对这一阶段的工作调整作出评价。笔者认为,1978——1989年中国救灾减灾工作调整的着眼点是缓解中央政府的财政压力,调整的核心是实行部分救灾款有偿使用,围绕这一原则,衍生出了救灾合作保险、救灾款包干使用、救灾扶贫周转金、救灾扶贫经济实体、农村双储会等措施。这些调整一定程度上减轻了中央政府的救灾负担,调动了地方政府的救灾积极性,推动了救灾工作的社会化。但80年代对于救灾工作的改变,本质上没有跳出传统救灾体制的框架,尚未从根本上改变以国家拨款为主体的救灾经费管理体制,因此属于调整的范畴,而不是真正意义上的改革。第三章1989年后中国传统救灾减灾工作的改革——以“建立救灾工作分级管理”为中心。主要介绍了1989——1998年间,即中国国际减灾十年委员会成立以来,中国救灾减灾工作的改革历程。80年代末90年代初,体制转轨成为当时社会的显著特征,救灾减灾工作也因此步入了真正的改革范畴。以中国国际减灾十年委员会的成立和减灾十年活动的开展所形成的救灾减灾氛围为契机,以“实行分级管理”为中心,中国对传统的救灾工作模式进行了改革,基本上确立了救灾工作分级管理,救灾经费分级负担的现代救灾工作模式,强化了地方各级政府在救灾减灾中的责任,使得救灾工作更趋合理化和科学化。可以说,90年代救灾减灾工作改革的最大贡献就是搭建了一个现代救灾工作模式的框架,完成了从传统救灾工作到现代救灾工作的初步转变。但在救灾与救济的区分、灾情等级和救灾责任的划分、政策法规的建设、部门救灾减灾的协调方面仍存在许多问题。第四章1998年以来中国自然灾害救助体系的建设——以“体系建设”和“能力建设”为中心。主要介绍1998年以来中国在自然灾害救助方面的体系建设和能力建设。从90年代末开始,中国的救灾减灾工作改革踏上一个更高的层次。即以“体系建设”和“能力建设”为中心,在现代救灾工作模式的框架之下进行了一系列的完善工作:充分发挥科学技术在救灾减灾中的作用;建立救灾物资储备制度;建立和完善灾害应急预案;建立现代化的灾害信息管理制度;明确政府在救灾减灾工作中的责任;充分发挥民间组织的作用等。通过改革,显著提高了中国救灾减灾工作中的综合协调能力、应急救助能力,以及救灾减灾工作的社会化水平。但在救灾物资储备制度、民间组织参与救灾的机制、救灾减灾综合性法律法规的建设方面仍存在不足。第五章为结束语。概括分析了改革开放以来中国救灾减灾工作改革发展的总体历程、演进过程中尚存在的问题,以及30年来中国救灾减灾理念的变化。在此基础上总结了改革开放以来中国救灾减灾工作改革的经验启示。在力图全面、客观地展现中国救灾减灾工作历史演变全貌的基础上,本文重点对本领域内研究较为薄弱的几个环节进行了较为深入的研究,系统考察了建国以来中国政府在国际救灾援助、合作和社会捐助问题上态度的变化及其深刻的历史背景,总结了其经验教训。更多还原

【Abstract】 Being focused on disaster relief and reduction work since reform and opening-up, the paper reviews the thread of reform and development about disaster relief and reduction work in China since 1978 systematically, and reveals its historical contexts and causes. On this basis, the paper summarizes the historical inspirations, lessens and changes of the work idea. According to the stage characteristics of disaster relief and reduction work, the paper divides its reform into three phases: the phase of adjusting traditional system(1978-1989); the phase of taking initial shape about modern system(1989——1998) and the phase of reform and improvement about modern system(since 1998).The paper consists of three parts: introduction, body of four chapters and concluding remarks(the fifth chapter).The introduction part mainly introduces the academic value and practical significance of this topic, research state of the field, breakthroughs and difficulties, main research methods and the basic framework of this paper.ChapterⅠreviews traditional disaster relief and reduction work between 1949 and 1978. This part analyses the damages on society organ and the negative effects on industrialization strategy, land reform, suppressing the bandits, agricultural cooperation movement, and so on, brought by natural disaster. In addition, this chapter reviews guidelines, policies and measures on disaster relief and reduction work of China from 1949 to 1978 .On this basis, ChapterⅠsums up the problems that exits in traditional system of disaster relief and reduction work.ChapterⅡintroduces the adjusting to traditional system of disaster relief and reduction work from 1978 to 1989 centering on changing the using methods of disaster relief funds. This part reviews the adjustments to the traditional system of disaster relief and reduction work, and analyses its backgrounds. On the basis of this, the author makes some valuations on the adjustments. The author thinks that the focus of the reform about disaster relief and reduction work between 1978and 1989 is relieving financial pressures of the Central Government, and the core of the reform is carrying out compensated use of part disaster relief work funds. According to this principle, Chinese government takes some measures, such as carrying on insurance in disaster relief work, responsibility for disaster relief funds, and establishing turnover funds for disaster relief work and poverty alleviation, etc. The adjusting relieves some burdens of the Central Government to a certain extent, and transfers enthusiasm of the local governments. Also, the adjusting promotes the socialization of the disaster relief work. But the adjusting has not jumped out of the traditional framework, and has not changed the system that disaster relief work gets appropriating funds mainly from the Central Government. So, all the changes on disaster relief work in the 1980s belong to the category of adjusting, but not reform in its true sense.ChapterⅢis mainly about the reforms to the traditional system of disaster relief work after 1989 when International Ten Years for Natural Disaster Reduction in China built up. The reforms on this stage centers on establishing the system with management at different levels. In the late1980s and the early 1990s, the society was characterized by institutional transition and disaster relief and reduction work stepped into reform stage in the true sense. Taking advantage of the atmosphere formed by the establishment of International Ten Years for Natural Disaster Reduction in China and conducting disaster reduction work, and centering on establishing the system with management at different levels, Chinese government began to reform the traditional system of disaster relief work, and built up a modern system that makes clear the responsibilities between Central Government and local governments. This system strengthens the duty for disaster relief and reduction work committed by local governments, and makes disaster relief and reduction work more scientific and rational. The author thinks that having constructed a basic framework of the modern system and finished the transition from traditional system to modern system is the largest contribution of the reform between 1989and 1998. But the reforms still remained some problems, such as distinguishing disaster relief work and social relief, dividing the disaster grades and duties, constructing legal system, adjusting different departments.ChapterⅣis mainly about the reforms and perfections to the modern system on disaster relief and reduction work. The reforms centers on the construction of the natural disaster relief system and construction of capability. Since the late 1990s, the reform to disaster relief and reduction work in China has stepped into a much higher level. Surrounding the construction of system and capability, Chinese government takes some measures to perfect the modern system of disaster relief and reduction work, such as giving full play to science and technology in disaster relief and reduction work, establishing materials reserve system providing disaster relief, establishing modern disaster situation managing system, clarifying the responsibilities of governments, giving full play to non-governmental organization. The reforms improved the comprehensive coordination capabilities and emergency rescue capabilities. Also, the reforms improved the socialization level of disaster relief work. But the reform remains some problems that need to be solved. Materials reserve providing disaster relief can not cope with the larger natural disasters. The mechanism that non-governmental organization participants in disaster relief and reduction work is still not perfect. The establishment of comprehensive law and statute lags behind the practical need.ChapterⅤis about concluding remarks. This part summarizes the overall reform course about disaster relief and reduction work in China since reform and opening-up, and analyses the existing problems and changes of the work idea. On this basis, the author sums up the historical inspirations and lessens in disaster relief and reduction work of China since 1978.In addition, on the basis of reviewing the complete picture that disaster relief and reduction work develops and changes, this paper makes some researches on the weaker links in this area, and reviews the changes in the attitude to disaster relief aids providing by foreign governments and organizations. Also, this paper analyses the development of social donation system, the backgrounds, lessens and enlightenments behind its development.更多还原